Aircraft accident emergency planning and emergency management
Introduction demands gain the upper hand. As a result, Many lessons are being learned through investment in safety measures declines, investigation of incidents around the by Lindsay Naylor. more capital is devoted to productive worldthe subject of this paper is the Presented to the International Society of growth and the whole operation becomes need for thorough planning of responses Air Safety ISASI 2000 Conference, less safe. The consequence is an increased to aircraft emergencies to ensure that Shannon, Ireland, October 2000 risk of catastrophe. The corollary of this casualties and property damage are line of thinking is a similar effect in an minimised. Investigation of major acci- organisations response preparations. In dents and some serious incidents in short, We have a safe operation, we have various parts of the world has shown the not experienced an accident for years; value of being prepared for the type of diversity of planning needs, this paper will why should we spend time and effort on event that everyone hopes will never concentrate largely on planning under- preparing for the effects of an accident? occur. taken by airlines, and airports and the We would be better off investing more With the inclusion of investigation of local surrounds. money in additional equipment that is serious incidents in ICAO Annex 13 in 1994, This paper examines these emergency going to generate income. many states have incorporated the re- planning processes, drawing on the Airline safety managers and airport quirement for such investigations into experiences of past accident and incident operators need to guard against such their national legislation. Others now investigations. These experiences show thoughts to ensure that their response investigate incidents and serious incidents that failure to heed the results of investi- preparations do not suffer. They need to without any legislative basis, whilst others gations can lead to history repeating promote the value and wisdom of pre- choose to continue investigating accidents itself in later events, perhaps following a paring for the unexpected. Devoting only, primarily because of limited resour- major accident in which lives are lost scarce resources and spending money on ces, skills, expertise and finance. because of poor planning. Ultimately, the preparations for responding to an acci- The economic and social effects of aim of comprehensive emergency res- dent may appear difficult to justify, but emergencies and accidents, including loss ponse planning is to minimise pain and an old adage applies. If you think of life, destruction of property and suffering of all associated with an emer- spending money on safety and preparing dislocation of communities, cannot be gency event. for an accident is wasteful, try having an overstated. Emergency planning is the key The paper also addresses ICAO Annex accident when you havent done any to minimising the harmful effects of such 13 provisions relating to investigation of preparations. events. Around the world, experience has the effectiveness of an emergency res- Reasons (1997) studies have included shown that communities and organi- ponse in an accident or incident, raising high-reliability organisations as targets sations that have effectively applied a the question of whether existing require- systems or companies having less than comprehensive emergency planning ments are sufficiently stringent. their fair share of accidents. He found process are better able to cope with the that people who operate and manage impact of adverse events. Emergency response planning these organisations do so on the premise Emergency planning may also help Professor James Reason of Manchester that every day will be a bad day, and protect organisations from litigation University has carried out considerable prepare for the consequences of a bad arising out of duty of care provisions in research and has published a great day accordingly. This attitude can be very common law. The general obligation of amount of material on Organisational difficult to sustain, particularly in time of fulfilling duty of care, and the specific Accidents. Reasons (1997) work on latent economic pressure, and managers need requirements under local state/territory and active failures and in-depth defences to resist any temptation for complacency. legislation, indicate clearly the need for and the dangers of neglecting or for- It is the company that continues to communities and organisations to de- getting the effects of things that rarely operate in this way, considering and velop, test, and review emergency plans. happen, is just as valid in response preparing for adverse events, that is less Only by carrying out a stringent planning planning and operations as it is to the likely to experience a serious accident. process can the lessons of past investi- production and transport organisations Nevertheless, if it should meet with such gations be learned. featuring in his studies. a misfortune, it will invariably be prepared A vital point in discussing emergency For example, Reason has offered the for that day. response planning is that aircraft acci- thought that when an organisation Airport and airline planning commit- dents can occur anywhere, not just at operates for a lengthy period without tees and senior executives should con- departure and arrival airfields. Hence, experiencing an accident or serious sider very carefully all aspects of the scope planning for such mishaps should be on a incident, a mindset develops in the and size of the emergency planning national scale, although much of this organisation that less effort need be project. The temptation to cut corners, planning will be focused on airport devoted to safety considerations. In this firstly to promote or accept an abbreviated emergency responses. Because of the situation, safety is eroded as productive planning process, or secondly, to try to
Winter 2001 19 operate with less than optimum numbers required to respond to an accident on or and testing the response plan. during a response, needs to be resisted. in the vicinity of an airport, such as fire, In joint response operations in some The basic premise in both the planning police, medical, welfare, and local govern- parts of the world, perennial areas of process and the emergency response, ment agencies, as well as national depart- uncertainty are the arrangements speci- should be to ensure that adequate re- ments and agencies such as customs, fied relating to command, control, and sources are committed. In practice, this agriculture and health. Each of these coordination arrangements. The reason for usually means initially committing too services will raise its own supporting uncertainty (and sometimes inter-agency many resources rather than too few. The response plan for the airport and will also conflict) is a general lack of understanding task can be scaled down if necessary. exercise these plans regularly. The exer- of what the terms mean, because although Another prudent consideration is to cises may or may not involve the airport the elements for successful resolution of utilise the range of staff expertise at all and other authorities, and are sometimes any accident are graphic in their simplicity, levels. Only through harnessing this held in isolation. However, as a general they can be complex in their execution. collective experience of staff members can rule, there are national and international On occasions, this has led to the response a successful response plan be formulated. requirements (eg ICAO, IATA) for full operation being hindered. The importance of a comprehensive scale exercises involving all elements of An essential part of the emergency consultative process in producing res- the internal international airport resi- planning process is to ensure that there is ponse plans has been stressed. This dents and responding agencies to be held no doubt or ambiguity as to all aspects of consultative process needs to extend into on a fixed time scale. command, control, and coordination of the community surrounding the airport In consideration of the differing res- all aspects of the operation. Indeed, and to local government agencies, as the ponse plans affecting an airport, one factor regular exercising of these elements with effects of a major disturbance on an needs to be clearly kept in mind. That is, all agencies that may be involved is equally airport, or on a community in the vicinity no matter which service or agency raises important. Agencies include those inter- of an aircraft accident will be significant. a response plan, the plan should not be nal to the airline or organisation, those Clearly, airlines and airport response produced in isolation. An integrated, outside the immediate sphere of that authorities cannot be expected to consult systemic approach is essential. There airline and, more particularly, those that with every community under aircraft needs to be full recognition given to the will involve the local community. flight paths, but they do need to discuss fact that the aim of an emergency response Different countries may utilise dif- the potential effects of an aircraft accident plan is to lessen the adverse effects of the fering interpretations of what is meant on communities short distances from an emergency on the community and/or by command, control and coordination, airport and with authorities that could unfortunate organisation. This can only but following are explanations that have be expected to respond to accidents be achieved through the cooperation of a general acceptance. remote from normal operating centres. all responding services and regular mee- Command Of particular importance will be the tings of the various elements to rationalise Command can only be exercised over reaction of the public living near the their individual responsibilities, and to staff in ones own organisation. It is the approach and departure ends of the practise the command, control, coordi- commitment and direction of resources runways. These people have unde- nation and communications necessary to by an officer of that organisation. To avoid rstandable concerns that an aircraft arrive at a positive outcome to the any confusion, and in quiet times well accident may affect their personal safety emergency. Thus, an airline needs to be before the event, management of many and their property. A firm relationship prepared to contribute to this local of the aspects relating to the aftermath of based on mutual understanding and built planning process if overall optimum an accident needs to be considered by up by involving the local community in emergency response plans are to be responsible members of the organisation. exercises and de-briefings will allow produced. The result will be a more A clear path of action outlining these residents to appreciate the safety con- efficient response to an emergency. arrangements should be followed, so that cerns of the airline, airport and the airport Composition of an airport response management and subordinate staff will community. Also, as members of the local plan is flexible, but should include: not be confused by any contention that a community, they value being part of the an aim or objective, the scope of the member of one organisation has com- wider planning and decision making plan, and authority for its issue mand over an employee of another process. joint management arrangements, e.g. organisation during the response. As an As in all undertakings of this kind, organisational responsibilities, mem- example, a Police officer may be the budget provision needs to be made for bers of airport emergency planning overall Incident Controller, and he/she the staffing, resources and training of staff committees may be empowered to direct senior in the operation of the response plan, and emergency response facilities/centres representatives from other services to this should be set in consultation with and their likely locations carry out certain tasks, but command of senior company management. With operational response details, including personnel always remains with an officer regard to an actual emergency requiring airport access and emergency response of that organisation. Simply put, com- activation of local response plans and requirements mand is exercised vertically within a Airport and Airline Emergency Response activation of plan service, never across services. Plans, there should be a designated budget welfare of staff involved in response and within each authority that is immediately counselling arrangements Control accessible, and on which immediate draw recovery operations and management Control relates to the situation itself. It is down can take place. Full reconciliation details of supporting plans, e.g. Care of the broad direction or control of a at the conclusion of the emergency should Relatives Plan, Media Handling Plan, response operation as described imme- satisfy company accountants. Terminal Evacuation Plan etc. diately above. For adequate control There are many services that are arrangements for training exercises flexibility, there needs to exist the ability
20 Australian Journal of Emergency Management to vary existing plans that are already in nuclear plant that experienced a significant Annex 13 does not preclude an investi- being, and to formulate new criteria and accident in September 1999. There appears gation delving into a response, but the action paths as the accident scenario to have been no emergency plan in provisions are not specific. For example, unfolds. Control involves using all agen- existence for the plant and the company the Survival Aspects section of an cies to reduce the effect of the accident, has faced massive legal/compensation investigation report requires brief des- and can require certain specific actions damages and senior dismissals/resig- cription of search, evacuation and rescue, from other agencies. An overall Incident nations. There is little doubt that any location of crew and passengers etc. Annex Controller (usually a police officer) will industry that operates in a potentially 13 does not require any specific comment normally be specified in response plans. hostile environment,would benefit by on the coordination of the response, However, until an accident site has been having in place a prepared emergency although survival issues which may depend declared safe, a Fire Service officer will response plan. One of the functions of such on relevant emergency response plans, usually retain site control. Control is a plan is to lessen the impact on legal and would probably be investigated in depth. closely related to coordination. financial aspects of the organisation in (In cases such as the El Al accident in times of stress. Amsterdam, emergency response plans for Coordination the various city emergency services would Coordination also relates to bringing Investigation of emergency have been outside the scope of the accident together all those resources, particularly responses investigation, but would probably have those that are readily available or pro- Any responsible authority charged with been the subject of a separate, independent curable and considered necessary to responding to a particular facet of an investigation.) handle those ongoing phases of the aircraft emergency will carry out a Further, in examining Organisational accident. The coordination role is usually comprehensive investigation of the and Management Information, an investi- the responsibility of a controlling auth- effectiveness of its part in a response gator is required to examine various ority as designated in the emergency operation. Similarly, authorities respon- organisations influencing operation of response plan, and will involve close liaison sible for the overall coordination of a the aircraft. An emergency response does to identify how resources can best be response will complete a detailed study not fall readily into this category, as it is provided. An important part of the of the whole operation. These investi- only required when there is already a planning process is to determine areas that gations (albeit sometimes in the form of problem with operation of the aircraft. will provide staff quickly and possibly be a relatively short discussion or debrief) Perhaps the area that provides the best prepared to work with shorter numbers are usually carried out after any acti- opportunity to include an investigation until the immediate effects of the event vation of an emergency plan for an of the response is the catch-all section have passed. Equipment-oriented re- operational or training response. Thus, titled Additional Information, which sources can cover a wider range of logistics. provided these authorities are prepared provides an investigator with the dis- For example, there could be a requirement to learn, and implement appropriate cretion to investigate anything he/she for providing or obtaining the plant and change when necessary, emergency chooses. However, in an incident investi- machinery necessary to continue rescue, response plans should remain adequate. gation, or a less serious accident investi- salvage and clean up operations. Whatever While this process ensures ongoing gation, the effectiveness of the response the resource, coordination is required to internal scrutiny of emergency response may not spring to mind as warranting any make appropriate local, national and plans, it sometimes lacks the necessary study. In such cases, there is no external international decisions, and therefore objectivity and independent focus such investigation of this facet of the incident bring about a successful conclusion to the as that generated by an ICAO Annex 13 or accident. operation. Controllers will certainly require investigation. Clearly, the investigating Considering that a well coordinated passenger and cargo details very quickly. authority of a state is best-placed to emergency response may be vital in (Note that provision of detailed passenger ensure that an impartial analysis of all saving lives, there may well be a case for a and crew manifests and details of cargo aspects surrounding an aircraft safety slight expansion of Annex 13, to provide carried should not present a problem occurrence is completed. This is the more guidance to investigators in exami- because these details are available to airline object of an aircraft accident or incident ning emergency responses both in liaison officers, but experience has shown investigationto gather and analyse accident and incident investigations. that gaining this information can indeed information, to draw conclusions, and to take time). make safety recommendations to assist Emergency response structure Although this paper focuses on airport in accident prevention. Ultimately, the Regardless of the frequency of use of an and airline emergency planning, the investigation should minimise future airport, or the likelihood of large aircraft emergency planning process and the casualties. accidents, all airport authorities should requirement to have a proven Emergency The provisions of Annex 13 are directed include emergency response structures Response Plan in place are not the primarily at an investigation contributing as part of the agreed emergency response exclusive provinces of the aviation to prevention of accidents and incidents. plan. Some parts of an airports emergency industry. There are many other segments This is clearly stated in Chapter 3. The planning structure may never be used, but of the workplace that benefit through a focus is not on the aftermath, the emer- trying to respond to an accident that is comprehensive planning process. Most gency response, although this can certainly beyond the scope of a response authoritys large organisations now adopt this affect the ultimate outcome of the event. expectations if prior deliberations and process (at least to some extent) to fulfil Regrettably however, investigations of planning have not taken place, is a recipe their legal obligations and to make the incidents do not always result in an for disaster. workplace a safer environment for their accident being prevented, so some effort Thus, small or large airports should employees. According to media reports, needs to be devoted to determining the consider joint emergency response a notable exception was the Japanese effectiveness of a response. agencies to cater for the whole range of
Winter 2001 21 possible responses. A small country provide accurate information to the program for victims relatives, and this airport without scheduled passenger jet assembled press. The media needs to be grew to include airline staff who were services could find itself being used as a provided with accurate information at affected by the tragedy. diversion airport for a large aircraft of a frequent intervals, but clearly specified Consideration should also be given to major carrier experiencing an emergency. and controlled (e.g. through scheduled conducting a debrief of all staff. There is This sort of event at least needs to have press briefings), or the airport (and value for each operating department to been addressed in emergency planning, airline) risks having speculative material hold an internal debrief to ensure that and the emergency response plan should broadcast and published. the organisations plan(s) was followed have identified the type of structure likely These agencies need to be linked with and was relevant. Possible amendments to be needed to react to such an event. An appropriate communication technology and enhancements to the plan should also important point is that, in effect, an which should be tested at regular intervals, be discussed in this session. airport authority needs to carry out a risk or there is a major risk of coordination Further, staff members should be management study as part of the emer- problems when the fateful day of an provided with the facts of an accident as gency planning process. accident arrives. Communication secu- soon as they can be promulgated, taking If any central planning document exists, rity should also be a consideration, and if into account the matter of potential legal reference to it makes emergency planning necessary, provision will need to be made proceedings. This could take the form of a simpler task. In Australia, a document for (say) encrypted message traffic. an airport or airline de-brief, and gives titled Airport Emergency Planning in all personnel an appreciation of the facts Australia which has been agreed by a Stress and the need for counselling and a feeling of belonging to a caring central planning committee, sets out a A point not understood by many who organisation. plan framework, providing airport emer- have not experienced catastrophic situa- Airlines in particular benefit from this gency planners with appropriate gui- tions, is that even the most stoic of process, the point being that an informed dance. persons can suffer serious adverse effects staff member is, in effect, a character Following paragraphs describe a typical from grief and trauma. These people can witness for the airline. Thus, every effort airport emergency response structure to put on a brave face at the time and may should be made to make staff aware of cope with most emergencies. The inten- not appear to have been affected to any the circumstances and the ongoing tion is not to provide an exhaustive list, great extent, but many years later, the progress of the accident investigation but to provide guidance as to the type of effects can manifest themselves. At this process. A small amount of time keeping agency that might be utilised. time, these previously unaffected persons staff members informed can be a valuable The hub for the response is an Emer- can suffer major breakdowns. Fatal investment in the future of the airline. gency Coordination Centre. As the name aircraft accidents are typically the sorts However airlines and responding agen- implies, it is the coordinating centre for of event that can result in this delayed cies need to ensure that only authorised all types of support. It also has the effect. staff divulge information to the media or responsibility to liaise with other external Attempting to predict the situation that public. agencies on progress of the response. could bring about this effect is not Airline emergency response plans Various other agencies (e.g. the affected possible. There are too many variables should always include a comprehensive airline) are inter-linked with an emer- and too many different personalities. section on counselling. In all large scale gency coordination centre. Those affected can involve the complete traumatic events, established emergency When an accident occurs, a Forward range from hardened firefighters to procedures need to be in place to provide Command Post is necessary close to the airline junior check-in staff. There does suitable counselling to all who may have site. The Incident Controller and agency not have to be a physical contact with the been affected. The list includes passengers commanders would be located there. scene of the operation, nor the viewing and crew, relatives of deceased personnel Immediate rescue and fire fighting of the painful sights to be seen around an and staff involved. operations are directed from the Forward accident site to incur trauma. While those Airport operators and other responding Command Post. involved in such activities may well suffer rescue and welfare agencies should all In a designated terminal, a Terminal mental distress and demonstrate a need have in place access to appropriate Command Post manages the response to for counselling, many others who may counselling services within their own the terminal emergency. This usually have been employed remotely from the response plans. As events unfold, affected means the crowd control problems of accident will need assistance. personnel may wish to utilise the services visitors to the terminal, and the matching Those airline personnel who have to of another agencys counselling service, process of passengers and those who have deal with emotional relatives and friends; particularly if they have operated along- come to greet or farewell them (loosely those who have to handle the identifi- side members of that agency during called meeters and greeters). To assist in cation and disposal details of the de- stressful periods. (In Australia many that process, separate centres for passen- ceased; those who did not join for this personnel elect, by invitation, to attend ger reception, relatives (or meeters and and are now involved; will all suffer from police debriefs and to utilise police greeters) reception, and recovery mat- stress to some degree. All will become counselling services.) This decision ching will be necessary. These centres are victims and survivors themselves. They should always be left to individual choice. pivotal to an airports ability to reunite also will deserve care and attention and a However, regardless of counselling ser- survivors with loved ones quickly, to clear responsible airline, airport, or responding vices available externally, all agencies terminal congestion, and to assist the authority or agency will need to ensure should be capable of catering for the affected airline with its recovery. that they attend to such personal coun- needs of their own staff. Lastly, a specially formed Media Centre selling. As an example, Air New Zealands The need for counselling will vary from will be essential in order to coordinate DC-10 accident on Mt Erebus in Antarc- organisation to organisation and indeed and focus interaction with the media, and tica in 1979 resulted in a major counselling from situation to situation. Many large
22 Australian Journal of Emergency Management companies that have a separate welfare training. However, senior staff need to Any response plan that has been and counselling plan, look to providing exercise their roles as much as anyone in developed by an airline operating over a suitably trained and rostered staff to be the organisation and responsible exec- network needs to be regularly exercised attached to a particular passenger in the utives will willingly participate. Training not only in conjunction with the local ratio of two staff per surname. This also needs to be given to the management authorities (although this can be a good attachment, provision of counselling and in activating and operating the plan on starting point), but also with local airports airline assistance may continue for a behalf of the company, with the training and agencies. Careful planning of these number of years. automatically flowing to all those who exercises is needed to ensure that they To minimise the traumatic effects of a have an active role in the operation of meet their primary goals and not become disaster on company personnel there airline response plans. Once training has vehicles for local political points scoring. should be no embellishment of the event been given there is a need to ensure that Training exercises may be randomly to staff but simple and proven facts given. it is reinforced with regular and appro- timed, or they may be a set piece with Counselling should be made available priate exercises. staff aware of the time of commencement from the outset. The stress experienced The frequency and scope of the exer- and ending of such an event. The table by on-site response and investigation cising of various components of the plan top exercise lends itself to the latter, more teams is self-evident, but equally impor- is essential. Managements aim should be regulated timings. Selected observers tant is that a watch should be kept on frequent, low cost exercising of portions should be detailed to attend exercises, staff in other areas. For example, staff who of the plan, such as activation and primarily to critique the airlines efforts have contact with the public will be subject communications. Exercises can be table in relation to its formulated response plan, to a range of pressures and stresses and top where selected management person- but also to pass similar thoughts on the managers will need to ensure that opera- nel run a simulation of an accident and performance of other participants. The ting personal are not suffering adverse can vary in size and complexity. They may aim is always to enhance an airlines and effects. involve actual deployment of resources, local response capabilities, and this can There should be provisions made to be simple or complex as the planning only be achieved through constructive bring in more staff to augment those committee desires, or can be full-scale comment. engaged in the ongoing handling of the field activities, either held in house or in Table top exercises offer the advantage accident administration as well as conjunction with an outside agency or of bringing all response agencies (inclu- operational procedures and a need to airport authorities. ding hospitals, local government etc) provide relief and rest facilities near the International obligations specified in together at relatively low cost, in a closed workplace. Transport to and from work ICAO Annex 13 require a full-scale environment to work through a scenario. should also be considered. As always, exercise involving the equivalent of the Thus, all involved maintain an awareness provision of a surplus of staff rather than largest aircraft to service that airport, to of how their roles fit with other response insufficient numbers is the preferred be conducted every two years. If the agencies. Too often in the past, some solution, downsizing later if required. airport is near hostile terrain, the exercise response agencies have given the im- Attempting to expand the operation is should involve sub exercises that will pression that they would prefer to operate always difficult and will increase the require response agencies to demonstrate independently. However, the results of stressful working environment for those proficiency in operating in that terrain. incident investigations have confirmed on duty, increasing the likelihood of staff With international operating standards that no one can hope to operate in a members requiring counselling and time prescribing full-scale field exercises at vacuum if a response is to be successful. away from the workplace. licensed airports at least biennially, Appropriate education and training of all participation in exercises of this nature concerned is vital. Emergency response training may satisfy airline requirements. Con- Programming of training exercises The raising and provision of an appro- versely, airline management may deem should consider actual experiences in priate response plan is only the first step that more is needed from an exercise than responding to actual emergencies. Any in an ongoing process to ensure that the the all-embracing field exercises can emergency that results in activation of an agreed requirements to mitigate the provide. On many occasions, such exer- Airport or Airline Emergency Response effects of an accident are achieved. To cises touch on airline reactions only Plan (from any sector of the airline, airport ensure that the plan is meeting the superficially. Therefore, airlines need to or allied agency) can be regarded as a response objectives as required both by consider programming additional specific training opportunity. When the emer- the airline and by airport and response purpose exercises, such as the previously gency has ended, such an event should be authorities, there is a need to regularly described table top exercises, to ensure the subject of a full debrief, with atten- review the Plan and carry out training that all areas of the company are well- dance by appropriate staff members. with staff involved. This training also prepared. ensures that airline plans remain in Selection of an appropriate facilitator Emergency planning in Australasia harmony with those of external agencies. is vital to the success of a table top By international standards, Australia is Relevant laws and regulations (inter- exercise. The facilitator is responsible for fortunate to have so far avoided the large- national and national considerations) will ensuring that the exercise flows smoothly scale responses that have been necessary change occasionally, so these also need to and needs to be familiar with emergency in some countries. However, Australia be considered in reviewing and exercising response processes to explain areas that recognises that its good safety records are plans. This process will ensure that airline may not be clear to all participants. He/ somewhat fortuitous and takes steps to plans conform to the highest standard. she also needs to be comfortable in guard against complacency. Unfortunately, some managers like to leading discussions in front of an au- As with the provision in many parts of consider themselves exempt from the dience comprising representatives of a the world, there is a general requirement need to undergo emergency response range of organisations. for all Australian states and territories to
Winter 2001 23 produce emergency response plans. These and gives a reason for pre-accident focus of mutual cooperation. In the very busy embrace policy and procedures for and planning. These special arrangements period shortly after an accident when an responding to all types of disaster, and and procedures should be derived from airline will rarely have sufficient staff include airport emergency plans as the planning process and reflected in a available to carry out the increased range essential ingredients. Vital to this planning written document, an agreed emergency of duties, respective managements may process is the role of local government, response plan. agree that staff from a competing airline which is pivotal in ensuring that prepara- Several years ago, the then Australian could be used to assist it through the tions are appropriate, although in general Civil Aviation Authority published gui- difficult period. The types of service airport operators around the country have dance to airport operators on how provided in this way would probably be embraced the need enthusiastically. emergency response plans should be limited to essential, short-term require- In some countries, broad-based National developed. Although this guidance inclu- ments, and is a means of maintaining the Disaster Plans are produced to cover all ded a detailed listing of planning consi- collective safety health of the airline known adverse phenomena that may have derations, it was grasped with varying industry. an impact on the country as a whole, with degrees of enthusiasm by operators. The These procedures are adopted in many serious consequences to the economic National Airport Emergency Planning countries with similar responsibilities and social structure of the state and the Committee (NAEPC) is a vehicle for being accepted. However, the organi- community. There will be contingency airport operators and airlines to partici- sational titles and legislative responsi- plans in being with a section devoted to pate in a national planning process, and bilities vary from country to country so acquisition of transport to cater for the adds emphasis to the need for compre- airlines in particular need to be aware of emergency, whether it be weather related, hensive planning processes around the differences in states into which they geological or industrial in origin, or even country. operate or overfly. war or acts of violence. Designated Almost from its inception, the NAEPC As an example, under New Zealand law, international flag carriers, as well as was chaired and managed by the Federal responsibility for national disaster internal and domestic airlines will be Airports Corporation (FAC). However, management is vested in its Civil Defence identified as transport providers, and with the demise of the FAC, there was organisation. Airports are required to expected to make their aircraft and crews concern amongst airport and airline have a Response Plan, but unlike Australia, available to the national government on emergency planners that the work of the there is no central, designated planning demand. NAEPC may have been impeded. However, committee. The New Zealand Civil Australian States and Territories have to the credit of all concerned, the com- Defence Organisation deals with all developed their own disaster and emer- mittee has continued to function effec- disasters including airports and major gency plans that support the national tively and airlines and airports still enjoy aircraft accidents and exercises are plans. In the same vein, local planning the central planning process to assist in carried out regularly for all types of processes ensure that plans produced maintaining effective response plans emergencies. complement state/territory and national around the country. The NAEPC (among Universities in various part of the world plans. It is important for airlines to be other things) is responsible for the have been specialising in advanced part of the national planning team and to production of Airport Emergency Plan- aviation studies for some years. These take part in the decision making process, ning in Australia, the planning document courses include a range of subjects related factoring into their own response plans mentioned in an earlier section. to most facets of aviation, but only in the likelihood that their aircraft and For sceptics who would cite Australias relatively recent times has the scope of manpower resources may be acquired by good safety record as justification for the courses been expanded to include the particular State or Territory in time minimising time and money spent on emergency responses. of national crisis. Once the national plan emergency preparations, they should In Australia and New Zealand several has been evolved, the airlines own reflect on years gone by when Australian universities and technical institutions planning documents should reflect agreed airlines did not enjoy such good fortune. include such emergency planning modules courses of action and levels of partici- For example, some 50 years ago, Austra- in their expanding aviation undergraduate pation in the national calamity. lian National Airways experienced four courses, so awareness of appropriate Again, by law, every licensed airport major accidents (hull losses) in a period emergency preparations is growing owner in Australia is required to publish of about three months. The airline did amongst those who can be expected to hold an airport emergency response plan, and not collapse, but was taken over by a future executive positions in the industry. to exercise those plans regularly. The competitor within a short time. Even Aviation safety professionals are engaged rationale for compulsion is because the considering that aviation is now far safer to deliver these programs ensuring that economic and social effects of any major than during the 1950s, accidents at (say) students are provided with the benefits of aviation disaster will involve damage to Sioux City and Amsterdam show that practical experience to complement property, at best a disruption to the local events requiring a major response from theoretical information. airport community and the surrounding local authorities can happen at any time, As in one or two other countries environs, serious injury, and the possibility even in a safe industry. Australian university students are en- of loss of life. Each of these elements will A fundamental point in gaining accep- couraged to join their local society (or require special and specific needs to bring tance and cooperation from all concerned chapter of ISASI) so that they can receive about a restoration to some kind of is that in developing this type of plan, a very early foundation in all aspects of normalcy to the affected organisations and airlines need to put their normal compe- air safety. The Australian Society of Air areas. Coping with the problems generated titive spirit aside and involve rival airlines Safety Investigators reinforces this in an emergency requires recognition of in the response planning process. In encouragement by having an annual specific arrangements and procedures that Australia the major airlines have shown student award for the best paper by a will be required to manage the emergency, that they are willing to undertake this type student on a relevant subject.
24 Australian Journal of Emergency Management Conclusion in assisting relevant authorities, com- nothing will change, lessons will not be Clearly, an accident is an unplanned or panies etc. to reduce the likelihood of an learned, incidents will lead to accidents unscheduled event, or is the end result of a accident, or to minimise casualties in the and increased numbers of casualties. combination of events and circumstances event of an accident occurring. For which usually produces unintended example, an awareness of how an airport References suffering, injury, death or property damage. authority may have reacted to an aircraft Federal Airports Corporation, 1993, Those who are involved in the operation emergency would certainly assist in Airport Emergency Planning in Australia, of an airport or airline always need to be reviews of emergency plans. However, the Emergency Management Australia, Can- on their guard to lessen the effect of such a investigation of an incident (or an berra. calamity on their customers, the public, accident) first needs to focus in some International Civil Aviation Organi- their organisation, and just as importantly, detail on the broader aspects of the zation ICAO 1994, International standards themselves and their staff. response, with appropriate recommen- and recommended practices: aircraft The problems that need to be con- dations to enhance response measures. accident investigation, annex 13 to the sidered and resolved by an organisation Finally, to learn from incident investi- Convention on International Civil Avia- commence at the time of the impact and gations requires those in authority to be tion (4th ed), Montreal, Quebec, ICAO. may continue for many years. There is prepared to change, and this can be Reason J. 1997, Managing the Risks of only one proven way to combat the effects difficult to achieve. However, failure to Organisational Accidents, Ashgate of the event: a well formulated and heed the results of investigations will Publishing, Aldershot. accepted company Emergency Response invariably lead to safety stagnation; Plan supported by strong leadership. The heart of this plan or any set of procedures, is a quick and accurate response to a given set of circumstances, produced by pre-planning and demon- Conference Announcement strated by exercise and practice. However, just as management of an airlines opera- tions is by human beings, management of an accident and its aftermath is by The Future of Emergency people and is therefore subject to human frailties. The complexity and sophisti- cation of the equipment used by an Management airline are unimportant unless the indi- vidual is prepared to deal with the Saturday 24th November, 2001 unexpected, the system failure. That is the At the MFESB Training College, 619 Victoria Street, Abbotsford key to successful emergency response planning, planning for the unexpected, and definitely the unwanted. Again this, our 23rd Seminar, will be a One-day presentation. We have selected The catchwords to successful miti- the theme The Future of Emergency Management this being of major gation of any accident aftermath are still importance to each of the various Emergency Services, support Agencies, command, control and coordination. Municipalities and corporate sector. Speakers will present various aspects of Nevertheless, we should still bear in mind the theme and, as always, we are targeting hands on people and planners. the thought that carefully planned trai- The Seminar will be opened by the Minister for Police and Emergency Services ning and the prudent (and sometimes Hon. Andre Haermeyer MLA and Victorias new Chief Commissioner of Police reluctant) allocation of resources for that Ms Christine Nixon will deliver the keynote address. training are strong factors in the minds of management. However, if sufficient Among the papers to be presented are finance and resources are not committed Emergency Risk Management. to the planning, training, and exercising What role will volunteers play in the future? processes, the organisation will risk a less Chemical, Biological and Radiological Training. than optimum response, loss of company Health risks faced by emergency personnel image and perhaps bankruptcy. DNA profiling, as part of DVI. In some countries, incidents and Overseas exchangesthe Timor experience serious incidents were being investigated Recovery from Emergency long before ICAO formalised the require- Unfortunately, due to the change of venue, the seminar is limited to the first 200 ment in 1994. However, even now, many attendees so book early and avoid disappointment. Further details will be investigations are not required to address circulated when finalised. the success (or otherwise) of the emer- gency response, and whether it was Mark your diary now - Saturday November 24th 2001. effective in reducing casualties. Indeed, For more information contact: Annex 13 requires only a brief description Mr. Mark OConnor of the rescue operation etc., so in an The Registrar, P.O. Box 52, Briar Hill, Victoria, 3088 (Enclose S.S.A.E) investigation of an incident, this may not Phone: (AH) 03 9432 5300 Fax: 03 9432 3656 Email: [email protected] be mentioned at all. Or you can register on the website at: www.cess.au.com Incident investigations are invaluable
Winter 2001 25